Summary

In 2016, the Democratic Socialist Republic of Sri Lanka adopted a new national mine action strategy, which sets the target for completion of clearance by 2020. The size of remaining antipersonnel mine and explosive remnants of war (ERW) contamination as of February 2017 was just over 26.3km², a large decrease from the nearly 68.4km² in mid 2015. In 2016, a total of 32km² was canceled by non-technical survey, 4.2km² was reduced through technical survey, and 2.3km² of mined areas was cleared, with the destruction of 59,304 antipersonnel mines. A total of 22km² was confirmed.

Recommendations for action

• Continued efforts should be made to implement efficient land release methodology and to more accurately define the size of remaining contamination.
• Sri Lanka should implement its resource mobilization plan and seek increased funding to ensure mine action activities can meet the 2020 clearance target.

Contamination

Sri Lanka is extensively contaminated by mines and ERW. Most contamination is in the north, the focus of three decades of armed conflict between the government and the Liberation Tigers of Tamil Eelam (LTTE), which ended in May 2009. The estimate of mine/ERW contamination as of February 2017 was just over 26.3km², a decrease from the nearly 68.4km² in June 2015. Contamination estimates across the 10 affected districts across three provinces are set out in the table below.[1]

Mine/ERW contamination (as of February 2017)[2]

Most remaining contamination is located in Sri Lanka’s five northern districts. Both sides made extensive use of mines, including belts of P4 MKI and II blast antipersonnel mines laid by the Sri Lanka Army (SLA), and long defensive lines with a mixture of mines and improvised explosive devices (IEDs) laid by the LTTE.[3] Indian Peacekeeping Forces also used mines during their presence from July 1987 to January 1990.[4]

The SLA used both antipersonnel and antivehicle mines, with all use said to have been recorded. Minefield records were handed over to the national mine action program and entered into the national database after the conflict, which greatly facilitated clearance.[5] Operators have encountered a wide range of LTTE devices, including antipersonnel mines with anti-tilt and anti-lift mechanisms, most of which the group constructed itself, and often containing a larger explosive charge than the P4 MKI and II mines (up to 140g compared to 30g). Tripwire-activated Claymore-type mines and, to a lesser extent, antivehicle mines, were also used by the LTTE, along with a number of forms of IED to act as fragmentation mines, bar mines, electrical and magnetically initiated explosive devices, and mines connected to detonating cord to mortar and artillery shells.[6]

Sri Lanka remains contaminated with a wide range of ERW, including unexploded air-dropped bombs, artillery shells and missiles, mortar bombs, handheld antitank projectiles, and rifle and hand grenades. Large caches of abandoned explosive ordnance also exist, particularly in the north.[7]

In 2016, HALO Trust reported that the impact of mines in its areas of operations is primarily socio-economic, with large areas of paddy field and agricultural land blocked for use. Highest priority for clearance is land designated for the resettlement and return of internally displaced persons, mainly concentrated in areas around Muhamalai, Nagarkovil, and the Jaffna High Security Zone, it said. In December 2016, two sectors of the Muhamalai minefield cleared by HALO were officially released, which allowed for the resettlement of a portion of the Intherapuram village and the return of 13 displaced families.[8]

In 2016, Mines Advisory Group (MAG) reported that in one of its areas of operations, in Mannar district, thousands of internally displaced persons have returned since 2010, though a further 1,300 families are still awaiting resettlement. According to MAG, more than 70% of the population in Mannar district rely on agriculture to get by, and land free of mines and ERW is therefore vital to support conflict-affected communities. Of note in 2016, MAG reported that it performed emergency clearance within the grounds of Mannar Technical College due to discovery of an antipersonnel mine during site preparation for the building of new classrooms. In addition, MAG also cleared three mined areas that were obstructing the installation of electricity pylons, enabling infrastructure to be built to supply communities in Mannar that were previously without electricity.[9]

Program Management

The Ministry of Prison Reforms, Rehabilitation, Resettlement, and Hindu Religious Affairs became the lead agency for mine action in 2015 as chair of the interministerial National Steering Committee for Mine Action (NSCMA), which sets policy and is mandated to “manage linkages within the government, mine action community and donors.”[10] Its policies and decisions are implemented by the National Mine Action Center (NMAC), set up in 2010[11] to liaise with government ministries and development partners to determine mine action priorities; prepare a strategic plan; and set annual workplans to put it into effect. NMAC is also responsible for accrediting mine action operators, setting national standards, and acting as the secretariat of NSCMA.[12]

Clearance operations are coordinated, tasked, and quality managed by a Regional Mine Action Office (RMAO) in Kilinochchi, working in consultation with District Steering Committees for Mine Action. The committees are chaired by government agents heading district authorities.[13]

Under its national mine action strategy for 2016–2020 (see below), the government of Sri Lanka intends to convene steering committee meetings for mine action up to twice per year at national level and at three regional levels, one for the east (Ampara, Batticaloa, and Trincomalee) and two for the north (Jaffna, Kilinochchi and Mullaitivu; and Anuradhapura, Mannar, Polonnaruwa, and Vavuniya, respectively).[14]

A decision by the previous government had set a deadline of the end of 2014 for the withdrawal of international operators from the country, which was then extended until the end of 2016. This decision led to NMAC’s activities being severely curtailed due to a suspension in funding while it awaited reassignment to a new government ministry following January 2015 elections, and a loss of some international funding for mine action operations as donors withdrew support in expectation of international operators being asked to leave the country. Previous political issues appeared to be resolved during 2016, however, with renewed political commitment to mine action in Sri Lanka. NMAC reported it fully expected international operators to continue operations until the completion of clearance in 2020 under the new mine action strategy.[15]

Strategic planning

In May 2016, a new national mine action strategy for 2016–2020 was adopted, developed with support from the Geneva International Centre for Humanitarian Demining (GICHD), and in consultation with operators and the SLA. The strategy, which sets the goal of clearing all mines and ERW by 2020, contains the following strategic objectives:

• The scope of the mine/ERW problem is identified, confirmed, and addressed using appropriate methodologies and resources.
• Mine/ERW safe behavior among women, girls, boys, and men is promoted.
• The needs of mine/ERW victims are determined and met and victims are integrated into society.
• Sri Lanka accedes to the Mine Ban Treaty and complies with relevant obligations.
• Long-term residual contamination is effectively managed by appropriate and sustainable national capacities.
• The Sri Lanka mine action sector can access quality information for its strategic and operational decision-making.[16]

An external mid-term review of the strategy will be requested by NMAC in mid-2018 to evaluate progress and ensure its continued relevance.[17]

Since early 2009, resettlement of internally displaced persons has been the focus of survey and clearance activities, including in Jaffna, Kilinochchi, Mannar, Mullaitivu, and Vavuniya districts in the north, and Ampara, Batticaloa, and Trincomalee districts in the east.[18] Clearance is focused on high-priority areas for resettlement, agricultural land, irrigation tank areas, and other infrastructure and development initiatives, as well as of heavily mined areas such as around Kilinochchi and the Muhamalai Forward Defence Line.[19] In addition, in 2016, the government of Sri Lanka granted increased access to areas of the Jaffna High Security Zone allowing HALO Trust to conduct clearance and MAG to clear previously restricted areas in Eastern province, further expanding the reach of mine action in the country.[20]

Standards

There were no changes to Sri Lanka’s National Mine Action Standards, which continued to be in effect in 2016, though operators reported a full review of the standards was planned to take place in the course of 2017.[21]

Quality management

In September 2016, NMAC expressed concern about reductions in quality assurance (QA)/quality control (QC) staff capacity and identified a need for assistance in training new recruits.[22]

According to HALO, NMAC’s overall response time for QA improved during the year as it was able to hire additional QA officers. It noted a number of improvements in QA, including final checks of post-clearance inspections occurring within one month of submission of a completion report, quarterly QA of data submitted to IMSMA, and frequently same-day approval of minefield execution plans upon submission.[23]

Information management

In 2015, an updated version of the software for the national Information Management System for Mine Action (IMSMA) database was installed and a process of data entry and ground verification was initiated.[24] In 2016, operators reported that significant efforts were exerted by stakeholders to correct erroneous data entered into IMSMA, leading to a more accurate representation of remaining contamination. MAG reported that, following its re-survey of six districts, and data verification in two additional districts carried out by HALO, the IMSMA database was completely overhauled in 2016.[25]

Operators

In 2016, demining was conducted by the SLA; one national NGO, Delvon Assistance for Social Harmony (DASH); and the two international NGOs, HALO Trust and MAG. A national organization, SHARP, became operational from January 2016 after securing funding and inheriting equipment and staff from international NGO Danish Demining Group, which closed operations in Sri Lanka in 2014.[26]

After a steep reduction in demining personnel in 2015 due to a cut in funding following the previous government’s announcement that all international demining organizations would have to leave the country by the end of the year (a decision subsequently reversed), in 2016, HALO Trust’s operational staff increased from 330 staff at the start of the year to 442, as a result of the re-engagement of a former donor. In December 2016, 39 manual teams were deployed as well as two survey teams and seven mechanical teams with the assistance of six machines, including four CASE front-end loaders, one tracked Caterpillar, one JCB excavator, and one stone crusher.[27] MAG’s capacity increased in 2016 to a total of 15 manual clearance teams, eight mechanical teams, and four community liaison teams.[28]

NMAC reported in October 2016 that the SLA employed a total of 555 persons in demining operations, of whom 515 were deminers, along with 11 mechanical flails. DASH, and its subcontractor, SHARP, employed 274 deminers, and a total of 355 staff during the year and one mechanical asset.[29]

Land Release

A total of nearly 38.5km² was reported released in 2016, an increase from almost 36.2km² in 2015. However, the amount of land released through clearance and technical survey decreased to 6.5km² in 2016, from close to 9.8km² in 2015.[30] Non-technical survey which began in June 2015 was completed in February 2017, with the cancellation of 42.4km² of suspected hazardous area (SHA), reducing the total contamination from just over 68.4km² to close to 26km².[31]

Survey in 2016

A total of 32km² was reported canceled by non-technical survey by MAG and HALO in 2016, while confirming nearly 22km² as mined.[32] Just under 4.2km² was reportedly reduced through technical survey during the year.[33] This compares to release by survey in 2015, when according to NMAC’s official data, a total of 26.4km² was canceled by non-technical survey and a further 6.3km² reduced through technical survey.[34]

In 2016, in close cooperation with NMAC, MAG re-surveyed six of eight contaminated districts to reclassify and confirm that SHAs registered in the IMSMA database were in fact confirmed hazardous areas (CHAs). It reported canceling a total of just over 27.6km² in 2016 through non-technical survey and reducing nearly 756,000m², while confirming over 6.5km² as mined.[35]

HALO Trust reported canceling just over 41,600m² of CHA during non-technical survey and clearance, and reducing over 123,600m² by technical survey, along with confirming close to 10,200m² as mined by survey activities in 2016. Additionally, HALO was tasked by NMAC to re-survey SHAs originally reported by other clearance operators, and in the process canceled 49 SHAs with a size of over 4.4km² and confirmed a further 103 areas with a size of nearly 14.7km² as mined.[36]

MAG emphasized the impact of the collaborative re-survey effort in fundamentally changing how Sri Lanka plans towards completion at both the strategic and operational levels.[37]

Mined area survey in 2016[38]

Note: TS = technical survey; N/R = not reported.

Clearance in 2016

Nearly 2.3km² of mined area was reportedly cleared in 2016, with a total of 59,304 antipersonnel mines, 117 antivehicle mines, and 2,907 items of unexploded ordinance (UXO) destroyed.[40] This compares to 2015, when NMAC reported 3.52km² of mined area cleared.[41]

Mine clearance in 2016[42]

Note: AP = antipersonnel; AV = antivehicle; N/R = not reported.

In 2016, MAG released in total over 1.12km² through clearance and technical survey, destroying over 10,280 mines in the process. It stated that this significant increase in output was a result of an increase in funding.[43] As a result of increasingly positive collaborative interaction with NMAC, MAG was able to conduct clearance in Eastern province for the first time since 2009. Subsequently, MAG was able to project that all remaining confirmed hazardous areas in Eastern province could be completed by the end of 2017.[44]

HALO Trust cleared 802,168m² and reduced 123,626m² in 2016, which shows a decrease in the amount of area cleared in 2016, compared with 2015 due to a decrease in the use of flails and beach-tech teams in Nagarkovil, as areas appropriate for the deployment of these mechanical assets were largely cleared in 2015 and in previous years. The SLA released additional sections of the Jaffna High Security Zone (HSZ) in 2016, which allowed for HALO to increase its pace of survey and clearance of former HSZ areas, from clearance of just under 40,500m² in 2016, compared with nearly 21,700m² in 2015.[45]

Deminer safety

HALO Trust reported that five deminers were injured in separate accidents during 2016. Three deminers involved in antipersonnel mine clearance accidents in March, May, and September sustained minor injuries and were able to return to work. As a result of the accidents, HALO reported that a revised risk assessment lead to a change in deployment and the increased use of mechanical support for demining. Two other accidents in August and November involving an antipersonnel mine and an unknown device resulted in more serious injuries to deminers.[46]

Progress towards completion

In line with Sri Lanka’s national mine action strategic plan’s completion deadline, both MAG and HALO Trust asserted in 2017 that clearance of all known contamination is possible by 2020, with increased support from donors and an expansion in clearance capacity.[47]

NMAC has reported that, cumulatively, a total of 133.4km² of mine contamination was reduced or cleared between 2002 and March 2017, and a total of 705,565 mines destroyed during that timeframe.[48]

Since 2012, Sri Lanka has reported clearing close to 32km² of mined area, though clearance dropped significantly in 2013 following a decline in capacity due to closure of the operations of the Swiss Foundation for Mine Action (FSD) in 2013, and two Indian demining NGOs, Horizon and Sarvatra, in 2012 (see table below).

Mine clearance in 2012–2016

According to Sri Lanka’s national mine action strategy, 6.5km² is expected to be reduced or cleared annually with sustained resources. As noted above, NMAC is expected to request an external mid-term review of the strategy in 2018 to evaluate progress and to adapt the strategy if necessary.[49] In 2016, a resource mobilization action plan to accompany the strategy was developed by the government of Sri Lanka, in collaboration with the GICHD, specifying, among other things, activities, tasks, responsibilities, and time-lines.[50]

The government created a national budget line for mine action in 2015.[51] NMAC reported that during the year, funding for its operational costs and the SLA’s demining unit had been provided by the government.[52]

HALO Trust reported that increased donor funding in 2017 had enabled it to hire 60% more national staff and it was expecting a corresponding increase in clearance output. It stated clearance priorities would remain unchanged and that a large portion of HALO’s demining capacity would remain in Muhamalai and Nagarkovil for the purpose of clearing land for resettlement.[53] It would focus on completing clearance of all mined areas in Jaffna, which it said will hopefully be completed in early 2018.[54]

On 21 June 2017, the first of Sri Lanka’s mine-affected districts was declared safe from landmines, after clearance of Batticaloa district was declared completed by MAG, with the support of the SLA and government of Sri Lanka.[55]

The Monitor acknowledges the contributions of the Mine Action Review (www.mineactionreview.org), which has conducted the mine action research in 2017, including on survey and clearance, and shared all its resulting landmine and cluster munition reports with the Monitor. The Monitor is responsible for the findings presented online and in its print publications.